C2C City TO CITY A Guide to the UCLG LEARNING UNIVERSE Index
Credits
Concept and Coordination: UCLG Learning Team
Author: Beth Friedemann, Consultant (2015)
Graphic design: ggrafic.com
1st edition: May 2016 Index
Page 4 INTRODUCTION
Page 6 Understanding the role and value of decentralised and city-to-city cooperation The challenge at hand: addressing the capacity gap in cities 01 Situating decentralised cooperation, city-to-city engagement and south-south partnerships Evolution of city-to-city cooperation Key actors in decentralised cooperation, city-to-city engagement and south-south partnerships Unique strengths of decentralised cooperation, city-to-city engagement and south-south and triangular partnerships The global context
Page 22 Methodologies behind decentralised cooperation, city-to-city learning and South-South-triangular Partnerships Leadership, ownership, and understanding 02 Learning methods Learning approach Learning tools
Page 36 Case Studies eThekwini Municipal Institute of Learning (MILE) Barcelona and Medellin City to City Cooperation 03 Mozambique and Brazil Decentralised Cooperation Page 48 Glossary of participating organisations Page 54 Interviewees for the publication Page 55 Key Documentation and Resources 4
INTRODUCTION
From its extensive engagement with cities, local authorities and their associations around the world, and through its unique convening, facilitating and enabling role, United Cities and Local Governments (UCLG), as the global organisation representing local governments, recognises that the knowledge and experience of cities, local authorities and their associations and their ability to contribute meaningfully towards achieving the sustainable development goals, (SDGs), remains largely untapped. In order to reach these and other THE RELATIONSHIPS BETWEEN LOCAL GOVERNMENTS goals, cities and associations are ARE BASED ON THE AUTONOMOUS DECISIONS OF collaborating and learning from each other in multiple ways. CITIES, LEADERS AND CITIZENS. Thus, the need for collaborative efforts between individuals, cities, and networks is greater than ever. dynamic decentralised cooperation, contexts. This special public-public including peer exchanges and a wide partnering, that involves open Many of our members have been range of other learning activities. and frank dialogue between many sharing their experiences and good stakeholders, helps leaders reflect, practices for decades. However, in Addressing demands from the cities learn and ground experiences. recent years, it has become clear requires leadership, commitment that application of these practices and an autonomous decision Local governments are international and lesson is complex as they very towards cooperation or association actors, and the impact of much depend on different contexts. through networks. Demand-driven decentralised cooperation and This is why collaborating around learning from the experiences of learning is important not only critical questions and challenges other cities is practical and enables for peace, awareness and the is becoming more important. UCLG cities to share their experiences understanding of a “one world actively promotes and provides of what has worked and what has concept,” but also for the platforms and entry points for not worked in their particular international positioning of cities Introduction 5
in a global economy. Increasingly, The second section presents cities from across the globe invest an overview of some of the in cooperation and learning, and methodologies that underpin this build strong, long-lasting relations collaboration, with a focus on what beyond specific projects. However, has worked well, and some of the local financial investments in lessons learned. It also highlights international work often present the critical need to constructively challenges. It is good to see that engage and involve both political some countries and the European and technical leaders. Commission are co-funding cooperation projects, thereby The third section presents case reinforcing collaborative and increasing opportunities and studies, one on the engagement of horizontal cooperation, as well enabling effective networking inside Durban in the learning agenda, and as future activities that will be Europe and globally. the other on city-to-city cooperation undertaken. between Barcelona and Medellin. This publication seeks to bring Lastly, it illustrates on multi- We are a dynamic organisation. together a sample of our members’ skateholder South-South triangular With our forward-thinking learning efforts – the UCLG universe of cooperation between Brazil and agenda, we seek to build strategic learning – illustrating some of Mozambique. connections, share lessons and the practices of decentralised promote learning. We also strive to cooperation and learning between The content for this report was bring networking and cooperation cities over recent years. This rich gathered from interviews with work communities closer together, array includes experiences from more than 20 stakeholders and motivate newcomers in the municipal associations from both the actively involved in decentralised regions, reminding them that they North and South, Regional Sections cooperation and city-to-city are not working in isolation. and Committees of UCLG, as well as learning processes in different direct city-to-city cooperation. capacities, and from a series of In this sense, this publication is UCLG policy papers, peer learning considered as a work in progress, The first section of the publication publications and other key and other organisations will be explores various forms of documents listed in the Annex. The interviewed in the future. cooperation, ranging from glossary provides a brief overview of decentralised cooperation in the organisations that took part in support of particular objectives, these interviews. based on the notion of solidarity and social activism, to city-to-city The organisational profiles of cooperation for the sharing of representatives from cities, technical knowledge that bolsters networks and associations, and learning and capacity building, as Regional Sections and Committees of well as the roles of the different UCLG who were interviewed for this actors engaged. It also underscores publication will be made available the value of such cooperation as an online. Through these interviews, increasingly important development they share some of their innovative tool – particularly in light of the 17 experiences, whether in terms of Sustainable Development Goals and strengthening local government the capacity gaps that cities face in administration, the achievement Josep Roig their implementation. of development objectives, or Secretary General of UCLG 6
Understanding the role and value of decentralised and city-to-city 01 cooperation CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 7
C2C THE CHALLENGE AT HAND: ADDRESSING THE CAPACITY GAP IN CITIES
Cities around the world transform rapidly, whether in terms of rapid urbanisation, changes in society, communication and labour markets, migration, the ongoing impacts of the global economic crisis, growing poverty and inequalities, insecurity and conflict, preparedness for natural or man- made disasters, or dealing with the impacts of climate change. The challenges of the current global reality mean that urban governance and management are both more complex and important – and urgently require responsive local leadership.
Municipalities are increasingly effectively catalyses action among involved in having a clear role in how partners, and in the services it provides these issues are addressed, as they are to cities and their citizens. at the forefront of reacting to these challenges and finding solutions. Yet, Cities generate opportunities and have thousands of cities are confronted a strategic space to occupy not only as with capacity gaps, hindering their key development players, providing ability to respond to these and other public goods and services, but also challenges. They often turn to UCLG as vital actors and advocates in the and their members to seek assistance international arena as development and to build their knowledge in order goals are agreed and implemented. to help fill this void. Coordinated action between local governments themselves and with the UCLG and its members can support international community and national these requests, particularly through governments is essential to enable enhancing collaboration within the cities to address these challenges and network and harnessing the potential to effectively promote sustainable of its members in terms of building human development in their on their respective experiences and communities as well as the Sustainable knowledge, how the organisation Development Goals (SDGs). 8
C2C SITUATING DECENTRALISED COOPERATION, CITY-TO-CITY ENGAGEMENT AND SOUTH-SOUTH PARTNERSHIPS
DECENTRALISED COOPERATION refers to the cooperation of subnational governments. It operates in parallel with State-to-State cooperation, in support of a particular objective and location, based on the notion of solidarity and social and environmental activism. Under the umbrella of decentralised cooperation, various forms of cooperation are taking place, including city-to-city (C2C) and association- to-association cooperation, and South-South and triangular partnerships.
DECENTRALISED COOPERATION
01 02 03 CITY-TO-CITY ASSOCIATION SOUTH-SOUTH COOPERATION CAPACITY AND TRIANGULAR BUILDING PARTNERSHIPS
01 02 03
CITY-TO-CITY COOPERATION ASSOCIATION CAPACITY BUILDING SOUTH-SOUTH PARTNERSHIPS bring takes many forms and focuses is a peer-to-peer cooperation between together Southern municipalities and largely on the sharing of technical, local government associations (LGAs), their associations who face similar managerial and political knowledge in particular for strengthening their challenges and share experiences of that bolsters learning and builds institutional set-up and capacity of transition. These partnerships make capacity amongst peers, serving advocacy and services. In addition, empirical knowledge and practices the interests of the public. C2C may various local government associations available and motivate shared involve local stakeholders that are participate in (externally funded) responsibility of Southern actors. considered relevant or that are development cooperation programmes TRIANGULAR PARTNERSHIPS involve engaging as activists. and partnerships for capacity building, southern municipalities and a third actor including city-to-city cooperation, or from beyond the South. A good example ‘local expertise’ of municipalities for is the cooperations among ILO, UCLG capacity building in other countries. and African members such as Maputo, Durban, Chefchauen, and Bourgou. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 9
C2C EVOLUTION OF CITY-TO-CITY COOPERATION
NORTH-NORTH NORTH-SOUTH SOUTH-SOUTH, triangular GLOBAL
Twinning SOLIDARITY Technical Exchange C2C GLOBAL NETWORK (‘40~now) (‘80~now) (‘90~now) (‘90~now) • Motivations to intensify • Capacity building • Resolution in High- • Network establishment relationships after WWII • Cooperation involving level UN Conference on • UCLG, Metropolis South-South Cooperation • Mostly EU Cities cities and civil societies • Thematic global networks (Nairobi, 2009) • Eurocities • UCLG CIB Working Group, (ICLEI, Smartcities, etc.) • Brazil, Korea, South • URBACT Program Platforma Africa, Turkey and China • EU DEvCo Projects as emerging actors
C2C LEARNING (2000~now) • Combination of practical and political approaches • Action and problem solving oriented • Involves 2 or more cities • Increasingly led by the South
Over the past several decades local Since the 1980s, local governments brought together local government governments have had numerous and their associations have increased associations, cities and regional exchanges in which they learn from and enhanced their international authorities to foster collaboration each other. 1 These have included development cooperation activities. A and a common understanding of twinning between cities in the wake main objective of these activities has development cooperation among of World War II, with activities aimed been to develop the capacity of local members and partners. mainly at inter-cultural dialogue governments to play a leadership and the promotion of peace, as well role in social and economic as relationships between European development that will reduce poverty and North American cities and and enhance social protection in municipalities with Africa, Latin their communities. UCLG, over the America, Asia and the Middle East, years, through, among others, 1 See, for example, United Cities and Local which are also long-standing, and the UCLG Capacity and Institution Governments (UCLG) – Policy Paper on Development Cooperation and Local Government, available at: diverse in origin and content. Building Working Group (CIB), has http://issuu.com/uclgcglu/docs/eng_book_web 10
Local governments worldwide West’ or ‘South-South’ dichotomy, THIS FORM OF are involved in many forms of towards a collective space where cooperation and partnerships the principal focus now is on the COOPERATION that cover a wide range of partnership created and working MAY ALSO BE different motives and objectives. together on common ground to COMPLEMENTED Partnerships between ‘northern’ develop public policies at the and ‘southern’ local governments local level, or to find solutions BY A NORTHERN and their associations have been for shared – and often global – COUNTERPART, created to strengthen capacity and challenges. The experiences shared to support development, where by stakeholders interviewed for MAKING THE reciprocal benefits are felt in areas the publication indicate that the COOPERATION such as participatory governance, North and the South are much ‘TRIANGULAR’ and where ‘southern’ cities and closer than it seems when it local governments have played a comes to addressing development leadership role, from which their challenges, in an environment ‘northern’ partners have been where everyone learns from learning. In the past decade, new everyone, and everyone has a partnerships for development solution to offer no matter where between local governments from they are located geographically.2 lower or middle-income countries – in South-South and triangular Another form of cooperation which partnerships – have started to has developed and spread is that
grow. This form of cooperation of international city cooperation, may also be complemented by a whereby partners from the network 2 Please see the glossary for the full list of northern counterpart, making the engage in learning, liaison and organisations that contributed interviews and other inputs. cooperation ‘triangular’. working through interactive spaces to professionalise their international Many practitioners concur that relations, and to position and cooperation has moved well promote their cities beyond their beyond the ‘North-South’, ‘East- borders. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 11
“Southern municipalities and associations may face similar realities and challenges. South-South learning can facilitate mutual understanding and experience sharing. If they are from the same region, the relationship can be even stronger… South-South learning processes can foster more equalitarian relations among all partners as it is more focused on sharing rather than giving or receiving. The idea that we all are there to both learn and teach CNM something creates a different kind of environment which Tatiane de Jesus the participants feel they can contribute towards”.
“When you put together a mayor from a city in Africa with a mayor from a city in Europe and in Latin America, when they have a discussion I don’t think it is in terms of a South- South or North-South angle, it is about the issue at hand. Diputació The challenge for this kind of cooperation – whether you call it decentralised cooperation or city-to-city cooperation, or Barcelona paradiplomacy – is that we don’t have a proper framework or Octavi de la Varga Mas indicators for measuring the impact”.
“AL-LAs is an initiative to rethink the way in which cities position themselves beyond their borders, professionalising the external action of their governments and making it more strategic. AL-LAs represents an effort to contribute collectively to the design of new, local, horizontal, non- hierarchical international relations, for a world that is changing at a swift pace. We need to be aware that we are in a constantly moving world and cities need to deliver results to their citizens. We can work in a different way AL-LAs developing our own projects once we are aware of our Braulio Díaz priorities”. 12
C2C KEY ACTORS IN DECENTRALISED COOPERATION, CITY-TO-CITY ENGAGEMENT AND SOUTH-SOUTH PARTNERSHIPS
MANY DIFFERENT ACTORS are involved in decentralised cooperation, city-to-city peer learning and South-South partnerships, and new actors are emerging as well.
Some of the actors engaging in these forms of cooperation include:
NATIONAL AND/OR INTERNATIONAL CITY NETWORKS (e.g. UCLG, ICLEI, CLGF, CUF (Cités Unies France), SPECIFIC PLATFORMS national associations of local governments, etc.) (e.g. Platforma – a European LOCAL AND/OR NATIONAL platform of local and regional AUTHORITIES; POLITICAL authorities for development) AND TECHNICAL LEADER ACTOR 02 ACTOR ACTOR 03 01
ACTOR DECENTRALISED 04 ACTOR COOPERATION INTERNATIONAL 07 ORGANISATIONS (e.g. UN-Habitat, International Labour PRIVATE SECTOR Organisation) (e.g. waste companies, ACTOR water boards, etc.) ACTOR 05 06 LOCAL AND INTERNATIONAL ACADEMIC INSTITUTIONS NON-GOVERNMENTAL (e.g. universities, research ORGANISATIONS (NGOs), CIVIL centres, think tanks) SOCIETY GROUPS
The role of networks and associations
The role of networks and associations cavoid ‘reinventing the wheel’, which role in initiating the project between is broad. While they can advocate can be achieved through exchange Brazilian and Mozambican cities. An and lobby in the international arena and cooperation among cities. A international NGO Architects Without around key issues of concern (e.g. further role of the association is Borders provided technical support, post-2015 development agenda or to make their own cities cooperate while LGAs played an important role Habitat-III negotiations), they also more, while adapting to constantly in identifying the issues to focus serve as a repository for information changing demands and remaining on, facilitating the communication and experiences related to issues of dynamic. between the cities and identifying local governance. They are service networks for Mozambican cities to providers in that cities can approach For example, within the framework carry on with their learning on the the various networks and associations of the Mozambique and Brazil focus areas. Within C2C and South- with complex issues they are decentralised cooperation project South cooperation, associations can seeking solutions for. Networks and (see Case Study 3, Section 3), local also play a similar facilitation role, associations ensure there are more government associations (LGAs) from and gather the needed technical solutions to challenges and help to Brazil and Mozambique played a key knowledge. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 13
Decentralised This cooperation has contributed cooperation to reinforcing local authorities’ institutional and operational The trend towards decentralised capacities (including political, cooperation amongst strategic and technical skills), decentralised actors has seen the and to strengthening their ability involvement of thousands of cities to develop innovative policies and regions around the world who adapted to their specific contexts. collaborate together as equals, Building alliances has also helped building mutually beneficial to empower local authorities 3 See, for example, “Study on capitalisation of European decentralised cooperation partnerships that are based on to interact with other levels of experiences”, available at: https://webgate. the exchange of knowledge, government and to lobby and ec.europa.eu/fpfis/mwikis/aidco/images/4/45/ 3 CD_final_report_EN_april2013.pdf assistance and best practices. defend their interests.
“I think that local leaders, especially in developing countries, know very little about the existence and modality of decentralised cooperation. I know because sometimes I have the opportunity to speak to Brazilian mayors and they really don’t know it exists, or even those who have heard of it don’t know how it works. I try to inform them with an example of the city of Rio de Janeiro, where we now have cable cars that connect the city to the slum in the mountains. The cable cars came about because of the UPP, which meant that public policy could reach the slum and improve it. The cable FNP cars were meant to improve the lives of slum dwellers. The mayor had learned of a similar approach used in the Paulo Oliveira city of Medellín, so they applied it to Rio de Janeiro, and this is decentralised cooperation, it doesn’t have to go through central government. For some things you have to go through central government, but to improve public policies such as this, we didn’t have to do that”. 14
Decentralised cooperation is based on serving the interests of the public and improving public policy (Ibid). It also builds territorial links, leads to increased partnership capacity with other local authorities, universities, civil society, etc., and enhances dialogue with local stakeholders, who are vital actors for local development, thereby involving and empowering communities while fostering shared understanding on issues of common recognising it as an important concern. Such cooperation is best modality to complement other understood as and embedded in forms of cooperation. Other donors a long-term ‘process’ that goes and countries are following slowly, beyond a ‘project helpful for tangible because the cooperation, although outcomes’ as it requires time to build funded externally, depends greatly the foundation of trust. on local authorities, decisions. UCLG members and partners, such as the Many cities have a specific budget UN Development Cooperation Forum line for decentralised cooperation (UNDCF), therefore bear in mind the and international work, such as in critical importance of funding and Spain, France or China, while other donors’ flexibility. cities, such as German, Korean or Brazilian cities, encounter Although there has been a lot difficulties or even are not allowed of growth with numerous cities to spend funds on cooperation around the world cooperating, it is or international travel. In order difficult to see the full landscape of to engage internationally, those decentralised cooperation as much of cities frequently partner with it goes unreported and it is difficult capacity building programmes to measure. Given this challenge, financed by national governments there is a need for ‘working out or international partners, generally loud’ or working very openly so that managed by the national local others are made aware of these government association. initiatives. Calls have been made for voluntary reporting and making The European Commission is reporting available that would help one of the largest co-founders fill in some of the gaps and facilitate of decentralised cooperation, connections amongst practitioners.
“In terms of southern learning processes, there is a frustration over the lack of funding and tight time frames. We can’t deliver on learning outcomes in a short period of time. Big donors don’t appreciate that. Practitioners therefore need to lobby, indicating that this is a process, it takes much longer. It takes two years to understand each other and to build trust. Learning will only happen when MILE there is a foundation of trust”. Sogen Moodley CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 15
City-to-city learning to minimum expression by compiling exchanges and to reinforce the and cooperation a (often very long) list of partnerships capacity of local actors. Peer-learning without any evolution. exchanges – bringing together and City-to-city (C2C) cooperation building relationships between undertakings can focus on one or Since the 1980s, local authorities various actors around a specific topic, more of a great variety of different and their civil society groups in many including member cities, networks, sectoral themes – environment, water developed countries entered into agencies and academia – draw on a supply, solid waste management, cooperation relations with their range of perspectives and experiences transport, housing, public health, counterparts in developing countries, that enrich solutions and promote economic development, education, motivated by political solidarity, also partnerships. tourism, etc. These might be oriented joining the agenda 21. around specific projects (e.g., The scope of substantive issues building a new sewage treatment Today, city-to-city cooperation addressed through decentralised works) or they could be involved often occurs with a thematic focus, cooperation and city-to-city learning with long-term collaboration of a providing a forum for exchange can span the whole range of local more administrative/institutional between politicians and technicians, government activity – and encompass nature (upgrading of local tax where the interest is not in making areas which are largely outside the collection, improving organisational profits but rather serving the public. responsibility of local governments. capacity, or financial accounting, Cities are increasingly critical of the etc.). C2C cooperation, taking place technical advice provided by national between local governments and their governments or external consultants communities, is often initiated by that are often “theoretical”. They political leaders, since the cities are want to exchange experiences so autonomous bodies with the political they can change their own realities DECENTRALISED will to trigger the cooperation on by applying the lessons of others. their own. Decentralised cooperation Immediate benefits are felt from this COOPERATION CAN BE can be implemented and managed learning exchange, not only by the IMPLEMENTED AND in many different ways, including ultimate targets – the citizens – but through non-governmental also by the administration as politicians MANAGED IN MANY organisations, various institutes, and technicians are exposed to more DIFFERENT WAYS, agencies or Local Government experiences, raising their level of Associations, or even cities. knowledge and awareness. INCLUDING THROUGH NON-GOVERNMENTAL In the origins of UCLG that date back Many cities and local authorities ORGANISATIONS, VARIOUS over a century, twinning became a who share similar concerns come to modality for local politicians to express UCLG as a network in order to find INSTITUTES, AGENCIES their solidarity and will to cooperate. (seek), work on (sense) and share OR LOCAL GOVERNMENT The twinning modalities are very solutions to particular issues of open, and engagements vary from concern. In response, UCLG promotes ASSOCIATIONS, OR EVEN intensive cultural or business relations peer-learning activities to foster CITIES
EVOLUTION OF MODALITIES
TWINNING NETWORKING PROJECT 16
“The city of Barcelona receives many benefits from this engagement [with Medellín]. For example, the municipal experts who participate in these processes grow both professionally and personally. They are City of more aware of the reality of different parts of the world and this is very enriching for the municipality of Barcelona Barcelona”. Jordi Cortés
“Cities can see what is working well in other cities, this in turn raises their confidence that the same can be undertaken in their cities as well – a kind of ‘see and believe’ approach. Such learning can be more beneficial UCLG-ASPAC than learning in an academic setting”. Bernadia Irawati Tjandradewi
Copyright of © VNG International CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 17
C2C UNIQUE STRENGTHS OF DECENTRALISED COOPERATION, CITY-TO-CITY ENGAGEMENT AND SOUTH-SOUTH AND TRIANGULAR PARTNERSHIPS
PEER-TO-PEER LEARNING FOR LONG-TERM SUPPORT 01 ENHANCED KNOWLEDGE 02 FOR STRENGTHENING The transfer of knowledge and THE LOCAL AND REGIONAL experience between municipalities on GOVERNMENT SECTOR a basis of trust and equality enables a genuine learning process. The The long-term relationship partnership makes use of the unique in- results in trust and constructive depth knowledge of local and regional dialogue which enables governments on service delivery, good sustainability and effective and governance and accountability. efficient capacity development.
COST-EFFECTIVE SUSTAINABLE PROCESSES THROUGH EXISTING 03 STRUCTURES Strengthening existing organisations and thus avoiding setting up parallel structures ensures sustainability. As there is no need to hire long-term consultants or set up project offices, the partnerships are cost-effective.
LEVERAGE LEARNING 04 EFFECTS, AUTHENTICITY OF PRACTICAL EXPERIENCE
The partnerships can leverage learning effects and knowledge between different levels of government and different levels of society. They contribute to building leadership at the local level.
05 RECIPROCITY, SELF-REFLECTION As partnerships are built on a basis of equality, partners benefit from the partnership, which can result in community development and active citizenship through international visibility, increased problem-solving capacity through access to good practices, and strengthened human resources.
Source: Based on the evaluation of Municipal International Cooperation Programas, interviews with PLATFORMA and UCLG. Available at the dociment of Development Effectiveness at the Local and Regional Level (p.21). https://issuu.com/uclgcglu/docs/platforma_development/21 18
C2C THE GLOBAL CONTEXT
manner, requiring collaboration, thus be leveraged as a powerful tool Implementation coordination and coherence to support effective localisation of of the Sustainable at different levels. Meaningful the Goals through the fostering of Development Goals implementation of these goals, capacity development, knowledge however, hinges on their localisation. transfer, sharing of experiences and (SDGs): Challenges and A new challenge in efforts to reach good practices, and inter-regional opportunities the SDGs will mean bringing together cooperation. Local governments around multiple stakeholders to learn the world, but especially in lower-income The engagement of local authorities together on issues of relevance countries, have a key role to play and their networks in global towards achieving the Goals. In as catalysts for local development development discourse and policy this regard, there is a need to move – but they also need assistance in dialogue has grown substantially beyond learning and sharing towards performing these complex tasks. in recent years and their role action-oriented collaboration to is increasingly recognised by foster local action – and traction This requires the motivation and international organisations as they – to make the SDGs happen. Local mobilisation of political and technical are considered essential to ensuring authorities thus have a pivotal role leaders to develop a vision for their progress on the ground. In particular to play in driving local efforts and communities, supported by the local governments played a strategic initiatives. However, many challenges necessary political will. The present lobbying role in the negotiation face municipalities in terms of juncture presents UCLG with a process leading to the adoption of the delivering on these Goals, including unique opportunity to support local Sustainable Development Goals in capacity gaps that must be overcome. governments as thousands of cities September 2015. around the world begin implementing Capitalising on knowledge and the SDGs. It also represents an Taken together, the 17 SDGs and the motivating action inside cities will enormous challenge as the UCLG 169 targets offer a transformative be essential in order to retain the World Secretariat does not provide agenda for sustainable development relevance of the SDGs and ensure their individual training; its role is to by 2030. Many developing countries achievement – a necessary success promote, collaborate, coordinate or question how the goals will be that will largely happen at the local influence members and development financed. The new development level. Decentralised (city-to-city, partners towards more problem-based agenda is universal, and should association-to-association and South- and action-oriented learning and be implemented in an integrated South triangular) cooperation should beneficiaries. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 19
“In terms of the SDGs, many African countries look at them, some consider them as Eurocentric. But the situation in each country has to be taken into consideration, they have to look at our own situation, assess our ability to implement the goals, rather than just giving it to us as an instruction that all countries must implement these SDGs. It’s important to say again that the ‘one-size-fits- all’ approach does not work for developing countries. The eThekwini SDGs must be approached with the understanding that all developing countries are different, have different levels of Municipal development, and have different needs. UCLG should come Academy, up with a multi-faceted, multi-pronged approach to say that when developing countries are expected to implement Durban programmes, partners must be well aware of the context at Mpilo Ngubane the local level and take it into consideration”.
“If we consider South-South cooperation as a new model, or if we look at new actors of city-to-city cooperation, I think it is very important to look at the lessons learned from the traditional North-South cooperation evolution process, because it has evolved for quite some time and there are a lot of lessons learned from how to do it and CIb how not to do it. It is really important to make sure the Renske Steenbergen cooperation is demand-driven and bottom up with local traction: it is essential that the political will is truly there at the local level, and to make sure that that is embedded in the structure, not only in the administrative structure of the local government, but also in the local society so that there is the demand to continue with it despite any political changes that might happen”. 20
Climate Change expertise with one another During the 3-year project cycles, cities – can help set the agenda in re-engage their partnerships, work In a global context, cities and local communities elsewhere and have a on practical results and involve their authorities play a developmental multiplier effect. stakeholders, also promoting the role that goes beyond the purely different modalities of international local when collectively addressing An illustrative example is the 100 cooperation of German national and issues such as climate change; city cooperation project for climate regional governments, such as youth they increasingly play a key part in change carried out by German local exchange and academic programmes defence of common ‘global public and regional governments with project or green economic partnerships. goods’.5 In efforts to combat support of Engagement Global,6 and Depending on the cities, engagement, climate change, cities are playing the city associations. With funds from small-scale to large-scale projects a key role in strengthening the the German Ministry, the projects are set up, such as solar heating in climate agenda as what cities support city-to-city cooperation on Nicaraguan villages or greening a do individually or collectively to climate change building on existing street in the city of Kumasi with advice address climate change – whether in partnerships between German and from the city of Dortmund, to a new terms of their action on adaptation Southern cities, many of which waste management plan resulting and mitigation strategies, or were created decades ago, through from an exchange between Cologne how they share knowledge and twinning or solidarity arrangements. and Rio de Janeiro.
Much the same as collective efforts to combat climate change, there is a growing need to address both emerging and ongoing crucial challenges that local governments face. In addition to urbanisation efforts expressed in SDG 11 to make cities inclusive, safe, resilient and sustainable, it is becoming increasingly important for local governments and UCLG members to share experiences and learn from each other in order to jointly address cross-border issues, such as preparedness for disaster, economic crises, and strategies to deal with increasing migration.
“I have really seen a trend over the past 10-15 years of the municipal movement gathering around a number of important issues. What happened in Paris with COP21 is a very good illustration of this. The Compact of Mayors gathered to say ‘We local governments are impacted by climate change and so we also have something to do with the negotiations because we are at the forefront of reacting to this and we are part of the solution as well’. All of these issues have become global issues in which the cities are more and more involved – and many of these issues CNM are reflected in the SDGs”. Sébastien Hamel CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 21
“My conviction is that cooperation between local authorities is the human face of international relations and public governance. We therefore need that local authorities are vocal at all levels, in development UCLG-Africa strategies, in environmental strategies, in all the Jean-Pierre Elong Mbassi strategies that can have an impact on people”.
Habitat III
The Third United Nations Conference UCLG is therefore underscoring the on Housing and Sustainable critical results of the learning exchanges, Urban Development (Habitat III) which is useful for the global agenda taking place in October 2016 in and the process of Habitat III. Research Quito, Ecuador, aims to marshal and higher education must be adapted global commitment to sustainable in order to increase local governments’ urbanisation and to implement a capacities. New Urban Agenda, towards building well-governed, well-planned, and How well local governments can perform efficient cities and other human their tasks – particularly in terms of settlements, based on the principles the post-2015 development agenda, of sustainability and equality.7 the New Urban Agenda, or in climate Cities and local authorities have an efforts – will have a huge influence on essential role to play in Habitat III the quality of life of billions of people as many of its goals will depend on over the coming decades. It is, thus, the services and policies implemented imperative to continue supporting locally. cooperation between the different cities, and to encourage new decentralised Using decentralised cooperation and cooperation and city-to-city cooperation, city-to-city learning for the exchange whether through funding for technical of expertise, good practices and support; investment in networks, practical experience in a range of areas exchanges and monitoring; or building (i.e. housing, education, sanitation, a wider network of southern members employment, etc.) can empower local to build the knowledge base on city-to- authorities to make a substantial city learning as a broader platform for contribution towards sustainable and exchanges and solutions in all areas. A inclusive urban development. It is more structured and systematic approach very important to track progress and to support counterparts from all over the understand the lessons of cities working world is needed to build resilient cities, together. This provides the needed fight climate change, reduce poverty, evidence and helps to identify the support democracy and local governance, 5 http://issuu.com/uclgcglu/docs/eng_book_web 6 http://www.engagement-global.de/homepage.html demands of local governments and their and provide basic service delivery to the 7 http://www.uclg.org/en/issues/habitat-iii capacities. people. 22
Methodologies behind decentralised cooperation, city-to-city learning and South-South triangular 02 Partnerships CITY-TO-CITY COOPERATION. A Guide to the UCLG Universe of Learning 23
C2C LEADERSHIP, OWNERSHIP, AND UNDERSTANDING
Methodologies behind decentralised cooperation and city-to- city learning differ distinctly from other forms of cooperation. In practice, participative means are used to organise and design demand-driven activities between municipalities of different cities or countries that enables a range of perspectives and practical experiences of municipalities in implementing policies, programmes or projects to be brought to the table that can enrich one another, provide a means to address differences and similarities in contexts, and allow for mutually beneficial exchanges.
Effective methodologies must technical leaders is equally important be supported by three critical in ensuring that the actual work on the elements: leadership, ownership ground is carried out and outcomes are and understanding. Together, achieved. Once the ownership of the these elements create momentum to project is established, the cooperation push the partners to go further. For and its results will automatically be example, committed participation longer term. An additional key element and the leadership of political leaders is having a sufficient amount of time to is essential to ensure buy-in of the develop a foundation of trust and build community and shared understanding the partnerships around the interests of amongst partners. The commitment of the project. 24
Decentralised cooperation is A number of key elements underpin partnerships include long-term participatory by nature. It brings successful development cooperation commitment, collaborative and together local governments and processes: 8 innovative partnerships, and scalability their communities, providing a space either side of dash up and down. platform for exchange that involves ◗ Co-ownership and co-responsibility political and technical leaders, and for the activities and outcomes; other key stakeholders, including ◗ Realistic objectives and a shared Principles guiding civil society, academia and the commitment to account for results; city-to-city cooperation private sector. The political leaders ◗ Transparency and openness, between ensure the necessary political buy-in partners and with local communities; Local governments exist before and while the technical leaders play an ◗ Cooperation is politically supported, after participating in a cooperation essential role regarding specific but not party politically aligned; and process, they fulfil the basic tasks areas of technical cooperation and ◗ Shared commitment to ensure that their citizens expect and mandate; ensuring the fit (adapting it) to the learning is spread and disseminated, this is very different from the role of local context. This inclusive approach also using the Local Government NGOs. Local governments primarily helps local coalitions to develop and Association and other vectors for aim to work together, sharing issues allows for mutual accompaniment and multiplier effect. and challenges in order to achieve support over time, which guarantees successful local development. Their the sustainability of cooperation Specific strengths of city-to-city form of cooperation is built upon four programmes. learning and South-South triangular core principles:
FOUR CORE PRINCIPLES OF COOPERATION 01 02 03 04 EQUALITY AND REJECTION OF RECIPROCITY SOLIDARITY RESPECT THE DONOR- where all partners amongst the for ideas and RECIPIENT stand to gain some partners, which can creativity benefits from the either be specific PARADIGM cooperation – in this (e.g. responding with cooperation context reciprocity is to a particular and support as its seen as a value and a humanitarian of foundation philosophy for action political imperative [natural disaster recovery, post-conflict reconstruction]) or more general, for example addressing shared challenges, such as tackling extreme poverty or mitigating the impacts of climate change on C2C local development. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 25
“Learning between cities has three components: transfer of technical expertise, technical knowledge and know-how and how it is transferred; support – which is an ongoing longer-term process, 3-5 years, not one-off – but it is also about mentoring, playing a mentorship role; and benchmarking is also a useful process. It allows African MILE practitioners to go to another setting and benchmark Sogen Moodley themselves against that setting”.
“South-South cooperation projects are usually demand- driven and cost-sharing methods are used to raise the commitment level of participating cities and local governments. A key element for South-South cooperation in the region to be most effective is having similar levels of development amongst cooperating cities, which facilitates UCLG-ASPAC learning and makes it easier to establish common Bernadia Irawati Tjandradewi ground”.
Motivating factors that local governments’ cooperation drive C2C cooperation may encompass a very wide range of forms and activities, to meet one or There are numerous motivations more specific goals. These goals can for local governments to engage in include:9 development cooperation, including helping to meet basic human rights ◗ Strengthening the role and place of and international development local government in development objectives, such as the former strategies; Millennium Development Goals ◗ Promoting the territorial (MDGs). Certainly, awareness on coordination of development challenges, empathy and exposure cooperation actions so they will are important, as evidenced by produce the maximum positive the mobilisation of support for impact on improving the living disaster response or conflicts in conditions of citizens; recent years. On the other hand, ◗ Measuring development cooperation the cities are cooperating for their performances among local own interests in order to be more governments (benchmarking); visible and to be more connected to ◗ Strengthening and supporting good relevant experiences, which could local governance, so that the local serve mutual interests. The rise in government can better carry out its networking cases of many European development roles; and 8 See “UCLG Policy Paper on Development Cooperation and Local Government”, available at: http://www.cib- cities are evidence of this. ◗ Improving local governments’ uclg.org/images/pdf/eng_book_web.pdf capacity to tackle and deal with the 9 See UCLG Policy Paper on Development Cooperation and Local Government, available at: http://issuu.com/ In order to promote and enhance impact of global challenges on local uclgcglu/docs/eng_book_web sustainable local development, development, among others. 26
C2C
mechanism and the atmosphere stakeholders, networks or cities want LEARNING METHODS created by being ‘critical friends’ to replicate or scale up cooperation. is the sharing of challenges and Some peer-to-peer exchanges result learning from mistakes. in declarations or roadmaps that A wide range of methodologies highlight the political will and value, are used to support decentralised Peer learning is an ad hoc network and through which participants cooperation and city-to-city learning. event to share the knowledge on a commit to strengthen the exchange of certain topic. Recently, UCLG members good practices and capacities, among and partners, such as ILO and UN others. Habitat, and the networks have been Peer-to-peer engaged in several topics such as cooperation strategic planning and management, PEER REVIEWS ARE INCREASINGLY economic development, public space, APPLIED ON LEARING EVENTS AND Peer-to-peer cooperation, learning and SDG. Metropolis is also fostering NETWORKING ACTIVITIES OF UCLG and exchange lie at the heart of this type of exchanges through the COMMITTEES SUCH AS FINANCE, local government development initiatives, which enables its members PLANNING, SOCIAL INCLUSION AND cooperation. Within peer-to-peer to work more on the specifc topics. CULTURE. THEY HELP DISCUSSING cooperation, there are many different CHALLENGES IN DEPTH AND modalities. It may be a one-to-one In various cities, based on the STRENGTHENING NETWORK LINKS cooperation, or involve several lessons learned from the peer-to- local authorities. It may be part of peer model of individual cities, a wider programme between local efforts have been undertaken governments in one country and to professionalise the working 01 another, or even be part of a world methodologies and alignment with regional or global programme. other larger development cooperation 06 02 Increasingly, it is gaining recognition programmes. Individual partnerships as a method to build capacity were found, in some cases, not to as it accompanies practitioners, be sufficiently sustainable, while whether city or association leaders, results were difficult to measure. In 05 03 in building knowledge to perform addition, some cities found it difficult tasks better and to implement to translate their local policies to projects themselves through learning those in other countries. Therefore, 04 by doing. Within this framework, to enable increased follow up on the local governments learn from peers programme management aspects through the exchange of best and of capacity development, to ensure 01. CASTING failed practices and lessons learned a greater impact on a broader area 02. CASE PRESENTATION and try to apply them themselves. than just the city, as well as to 03. KEY QUESTION This is often initiated through ensure home-based approaches can 04. METHOD CHOICE specific project funding which acts be translated to the approaches of as a catalyst for action and capacity the partner city, broader targeted 05. CONSULTATION building and provides opportunities initiatives were set up. These 06. CONCLUSION to vitalise and stimulate partnerships. programmes would typically target
The peer-to-peer cooperation more cities in the same country and Resource: Peer group Supervision, http://www. methodology benefits of a ‘product’ would help local government experts peer-supervision.com/Ebene2/6phasen.html that condenses the acquired from the home country to support knowledge for action – this can serve cities in the partner country, which as a critical starting point for other enable broad-based changes in local cities that face similar challenges. governance with solid, professional support to local governments, in A range of activities can support coherent programmes aligned with peer-to-peer cooperation, including other development interventions in technical visits, training sessions, the partner country. sharing of management experience, Examples of peer learning experiences facilitated by UCLG are online training, leadership It is essential to document the available online: programmes, etc. One important learning process that happens http://www.uclg.org/en/media/ opportunity in the peer-to-peer between cities. Often, other news/learning-city-city-cooperation. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 27
“From a methodology point of view, sharing between peers is a vital part of the learning process. From a knowledge management perspective, peer learning and sharing allows for a process of tacit knowledge to be externalised, reflected on and in so doing allows for new knowledge to be developed. The role of external agents, like international partners, who have experience not just SALGA of content, but of methodologies, is critical in order to Kubeshni Govender enable optimised learning”.
City Twinning
The notion of ‘twinning’ is the Twinning represents a long-term coming together of two communities commitment between the partners who wish to take action in facing and is not a short-term project their problems and developing partnership. Because of this long-term closer ties of friendship. The town commitment, the partnership should twinning movement started in Europe always be able to withstand changes shortly after 1945 with the goal of in political leadership and short-term preventing further outbreaks of war difficulties that one of the partners and promoting peace, amongst other may face. It is vital to ensure that the objectives. Twinning partnerships partnership is regularly reviewed, cover a wide range of issues – art and make sure it meets current needs, and culture, young people, citizenship, remains fresh and dynamic. sustainable development, local public services, local economic development, Nowadays, twinning is not limited social inclusion, solidarity, etc. to the countries of the European Nowadays these partnerships may Union. In the 1970s, the restoration lead to specific projects on subjects of democracy in Greece, Portugal and such as water management, economic Spain led to a range of new twinning development or improving social partnerships with the municipalities services. The development of European of those countries. The changes in partnerships from different parts of central Europe following the fall of Europe has provided an opportunity the former communist governments For more information: to share problems, exchange views from 1989 led to a proliferation of http://www.twinning.org/en/ and understand different viewpoints twinning links. Countries such as page/enter-our-universe-of- twinning#learning-city-city- on any issue where there is a shared Switzerland and Norway have always cooperation. interest or concern. been actively engaged. 28
URBACT Methodology in weaknesses and strengths. The local Agenda 21 for Culture action plan helps drive the exchanges and learning activities involving all UCLG’s Committee on Culture/Agenda stakeholders. The end result is long- 21 for Culture, which brings together term plans at the local level. cities, organizations and networks to learn, cooperate and launch policies URBACT is a European exchange and programmes on the role of culture and learning programme promoting in sustainable development, builds sustainable urban development. on the ‘URBACT’ methodology as it It is mainly financed by EU funds, seeks to promote exchanges between with additional national and local cities where they share experiences, contributions. Phase III of the problems and possible solutions, project, URBACT III, taking place coming up with innovative ideas on how from 2014-2020, focuses on Action to address challenges related to culture Planning Networks to improve and sustainable urban development. the capacity of cities to manage Learning has two dimensions: one is sustainable urban policies, and the rationale or the core, and the more specifically to strengthen second is about adapting the learning their capacity to design integrated on a particular policy challenge so strategies for sustainable urban that it fits into daily work. development. The networks are expected to support an organised Adapting the learning to daily reality process of exchange and learning is done, in part, through creating among peers across Europe, with Access the URBACT online library at: http://urbact.eu/library-contents. local action plans. Through the action a view to improving local policies See also: http://urbact.eu/capacity- plan, actors commit to working on through concrete action planning. building challenges using a participatory Cities involved in Action Planning approach (local authorities, cultural Networks identify a policy challenge actors, civil society, etc.). This they want to address at local level and involves joint discussions and joint then commit to develop an Integrated implementation in the action- Action Plan that will address this planning process after a phase of challenge, using a participatory self-reflection, identifying areas of approach. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 29
URB-AL III - Promoting local public policies internationally The third phase of the programme, URB- AL III, held from 2008-2013, featured a The Province of Barcelona has been social cohesion approach in the design engaged in URB-AL projects, using and implementation of public policies, knowledge and the transfer of which supported the generation of knowledge to form the basis of many multi-stakeholder governance systems, of its strategies linked to building the creation of mechanisms that strong local governments, working integrate the decisions of the public, with networks of local governments to and the implementation of strategic improve the capacities of politicians, plans with a future vision, which could civil servants and public officers also be considered as reference models through training. for further social cohesion policies implemented by Latin American local URB-AL is a regional cooperation governments. programme involving sub-national governments of the European Union URB-AL has enabled the involvement of and Latin America. The programme, many local governments in knowledge funded in large part by the European sharing. It has had a direct impact in Union, was initially created to develop 74 Latin American territories, in more networks between local authorities than 500 municipal administrations, The final report of the URBA-AL III and, on the basis of exchange of with a total population of 26 million programme is available at: https://ec.europa.eu/europeaid/ experiences on different urban policies, people. More than 1.8 million people regions/latin-america/urbal_en to contribute to the wider goal of have directly benefitted from URB-AL promoting social cohesion in Latin and more than 160 organisations have America. directly implemented its activities. 30
Africa Local Government Peer Review Clearinghouse
UCLG-Africa is the umbrella The performance assessment is organization of local government carried out against a benchmark of an in Africa, representing nearly 350 ideal council or association of local million Africans citizens. The Africa governments, taking into account the Local Government Peer Review following four key dimensions: Programme, inspired by the peer review mechanism of the Local Government Association of England and Wales, was set up by UCLG- FOUR KEY DIMENSIONS Africa at the request of African local authorities with the aim of using the networking of local governments ACHIEVEMENTS OF THE ORGANISATION: as a source of expertise that can be This dimension focuses on the council’s or association’s tapped in order to improve service intentions about its achievements, and how it has delivery and the quality of local 1 improved and delivered the outcomes that local people governance across the continent. It need. works as a friendly tool to assess the performance of local governments and their associations at the service LEADERSHIP AND MANAGEMENT: of their members and citizens. This dimension looks at the council’s or association’s vision and ambition for itself and for the area, whether the council focuses its resources on what matters, and 2 the effectiveness of the decisions taken towards the realisation of the said vision and ambition.
ENGAGING WITH CUSTOMERS, COMMUNITIES AND PARTNERS: This dimension looks at how the council engages with customers, communities and partners to ensure that 3 services are customer focused, and to what extent the association works with, and at the service of its members.
Further information is available at: RESOURCE AND PERFORMANCE http://www.afriquelocale.org/en/ MANAGEMENT: component/minisite/minisite-12/ This dimension looks at how the council is making the The-Africa-Local-Government-Peer- Review-Program/1-peer-review. 4 best use of its resources, including people, money, technology and assets. See also: https://vimeo.com /123425831
An initial pilot project covering five the African Union so that the local local government councils and/or dimension is present in the overall organisations was successful; the Africa Peer Review Mechanism (APRM) aim now is to scale-up the project. of the AU. The initiative will be linked The idea is to establish a three-year to South-South cooperation through programme on peer-review and link mentoring and the exchange of good it to the peer-review mechanism of practices. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 31
Monitoring based on the Logical Framework Approach
UCLG’s Working Group on Capacity Traditionally, the Logical Framework cooperation involves many actors and and Institution Building (CIB) is a Approach – a tool to help strengthen project logics and timings can fall technical platform for professionals project design, implementation short. This is why it is often embedded from Local Government Associations and evaluation, used throughout in other activities. In this regard, it (LGAs) and individual local the project cycle – is one of the is essential for donors to understand governments active in the field most used methodology frameworks that these programmes are part of of capacity development and for development cooperation long-term processes, and that working local government development programmes. However, this from a programmatic or project-based cooperation. The CIB is initiating a methodology alone may not be approach is not always very easy for process where it will compare monitoring sufficient in measuring effects local governments, which may require and evaluation methodologies that are and impact for local governments. different ways of working in terms of used by CIB members. As stated before, decentralised tracking the progress and impact.
ACTIVITIES OUTPUTS OUTCOMES IMPACTS 32
C2C LEARNING APPROACH Blended Learning Blended Approach Learning The Municipal Institute of Learning (MILE) was launched in 2009 situated within the eThekwini Municipality in Durban, South Africa, in partnership with UCLG and the national association SALGA. It Habits Capacity has become a major reference for Southern African governments and development practitioners. A blended learning approach uses a variety of methods – such as Attitude group discussions, presentations, field visits, etc. – toensure that participants are engaged throughout the sessions and to MASTER CLASSES support deep and meaningful Three-day structured classes on issues such as planning, water learning. MILE uses this approach and sanitation management, revenue management, solid waste when facilitating workshops and management, tourism development and other cutting-edge courses other activities which involves the made available to practitioners from all over the African continent. use of a number of different ways to Master Classes are held in a structured and formal way, using the engage with participants to maximise learning, including: innovations from each of the relevant municipal departments.
LEARNING EXCHANGES During international and national learning exchanges the sharing of information is reciprocal. These exchanges are more informal, and all learn together, as all hold knowledge.
INWARD-LOOKING HALF-DAY SEMINARS Internal learning sessions for all managers within eThekwini Municipality, addressing issues such as ethics, corruption, good governance, etc.
COLLABORATION WITH ACADEMIA Partnering with local academic institutions to promote learning, research and innovation. This engagement also aims to make sure that the knowledge and intelligence behind their curriculum produces students capable of working in the municipal work space.
MUNICIPAL TECHNICAL SUPPORT PROGRAMMES For SA and African municipalities around urban strategic planning. The Municipal Technical Support programme offers mentorship and technical support to municipalities with reduced capacities thereby enabling them to improve service delivery. It goes beyond the Access information on these MILE transfer of knowledge, with a focus on providing support to help in activities online: implementation of the strategic plan. http://www.mile.org.za/ Come_Learn/Pages/default.aspx. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 33
C2C LEARNING TOOLS 5 Capabilities Framework
VNG International, the resources and support); adapt International Cooperation Agency and self-renew; and achieve a of the Association of Netherlands certain degree of coherence within Municipalities, aims to strengthen the organisation. The 5Cs can be local governments and their used as a lens to look at existing associations in developing countries capacity in any organisation. The and in countries in transition, tool takes stock of the current and develops services all over situation of a local government in the world. VNG International is terms of capacity and considers using the “5 Capabilities” (5Cs) where the organisation would like framework as a tool to improve to be in terms of new objectives local government capacity and and regulations, and what is performance that focuses on five needed to get there. All of the five A toolkit on how to apply the 5 core core organisational dimensions or capabilities are inter-related and capabilities to assess and improve local government capacity and performance is capabilities of any organisation. equally important. The methodology available at: The 5Cs are capabilities to: act provides an opportunity for http://www.vng-international.nl/ and commit; carry out functions organisations to focus on what wp-content/uploads/2015/07/Paper_ or tasks (to deliver); relate to is going well and what can be on_Local_Governments_and_the_5_ external stakeholders (to attract enhanced. Capabilities_opgemaakt.pdf.
Benchmarking Learning Tool COLLECT VNG International also has a •Input, output, outcome benchmarking learning tool where • In line with existing guidelines and the method used is the comparison frameworks of performance indicators with similar organisations, enabling learning from the good practices of others, while focusing on a particular issue, for example, low- IMPROVE VNG COMPARE income housing delivery. Data is •Design strategy INTERNATIONAL •Similar organisations gathered from participating local • Implement BENCHMARKING • Highlight differences governments. A general report is prepared and two or three meetings are held among the local governments to raise questions about what goes well, what the LEARN differences are, what the challenges •Strengths and weaknesses are, and the reasons behind these. •Learn from others The goal of the discussions is to •Opportunities for enable local governments to be improvements able to redress the situation or to •Analyse differences improve things. Further data can be gathered in a year’s time to see More information is available online at: if improvement/progress has been http://www.vng-international.nl/our-services/benchmarking/ made on the issue or not. 34
The awards have become an interesting modality to share and promote best practices. Our members experience that the awards are also effective tools to enlarge the network and create dynamics of mutual learning.
The Guangzhou International analysis of the local implementation Award for Urban Innovation of the Sustainable Development is held biannually and is co Goals. The City of Guangzhou holds sponsored by United Cities and the Guangzhou International Urban Local Governments (UCLG), the Innovation Conference with the World Association of the Major exhibition to spread the practices Metropolises (Metropolis) and the chosen. City of Guangzhou. In recent years, the City of The Guangzhou Award aims to Guangzhou has also started to recognise innovation as a key organise learning visits to apply contributing factor in tackling lessons of the practice selected and challenges related to society, the is, therefore, interested in being economy, the environment, and more engaged in the UCLG peer governance. Around 250 initiatives learning modality. from 160 cities were submitted for More information: each Award in 2012 and 2014, and In addition to this, the UCLG Guangzhou Award 5 out of the 15 shortlisted cities Committee of Culture, in partnership www.guangzhouaward.org/en/ were selected as the winners. with Mexico City, present the index.html International Award UCLG-MEXICO International Award UCLG - Mexico The Award serves to promote the CITY-CULTURE 21 and the UCLG City - Culture 21 sharing of lessons learned from Committee on Development www.agenda21culture.net successful innovation. Today, Cooperation and City Diplomacy, in Peace Prize it works as a platform for the partnership with the city of Bogotá, www.peaceprize.uclg.org/en documentation, dissemination and have developed a Peace Prize. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 35
LEARNING CHECKLIST: When thinking about engaging in learning activities, please check:
1. Understanding of the Concept
1.1. Is the concept clear to you? (e.g. SDG 8)
1.2. Can you define a baseline, or in other words, a starting point?
1.3. Can you define your problem and situation? 2. Purpose
2.1. Why do you want to learn the topic? - Do you have an interest? - Do you want to have a chance to benchmark? - Do you see the practice as trendsetting?
2.2. Why do you want to share your experience? - Do you want to compare your work with others? - Do you want to share the result of trial and error in your work? 3. Time
3.1. How long do you expect to carry out the learning project?
3.2. How many days can you invest in learning and capacity building?
3.3. How many days do you want to be dedicated to sharing your own practice?
3.4. How long will it take to implement the action you want to learn for? 4. Location
4.1. Can you learn outside your city?
4.2. Do you want to include a site visit? 5. Human resources 5.1. How many staff can be involved in learning and apply the new practice? 5.2. Is learning a part of their professional job description? Or is it seen as a side task? 6. Financial resources
6.1. Do you invest money in learning and assistance for problem solving?
6.2. Do you plan to invest in a practice to apply the lessons learnt? 7. Communications
7.1. In learning activities, are you comfortable with using the host city´s language?
7.2. If not, how can the language barriers be resolved?
Source: UCLG Learning Team 36
Case Studies UCLG members have much valuable experience in decentralised 03 cooperation CITY-TO-CITY COOPERATION. A Guide to the UCLG Universe of Learning 37
C2C
This last section presents 3 recent case studies, the first on the experiences of eThekwini Municipal Institute of Learning (MILE), and the second on the unique city-to- city relation built over the years between Barcelona and Medellín. The third is multi-stakeholders South-South triangular cooperation between Brazil and Mozambique.
UCLG holds instruments to facilitate The compendium of experiences on the meaningful exchanges between CIB website provides a comprehensive practitioners, while its Capacity and overview of the local government Institution Building (CIB) Working development cooperation projects and Group provides a technical platform for programmes that CIB Working Group professionals of local governments and members are involved in. local government associations (LGAs) working in local government capacity development and decentralised cooperation. A main contribution of the The compendium is available CIB platform is providing information online: about the development cooperation of http://www.cib-uclg.org/ its members, LGAs. compendium-page. 38
CASE STUDY 01 DURBAN’S DECISION TO ESTABLISH A MUNICIPAL INSTITUTE OF LEARNING (MILE)
The eThekwini Municipality is the Seven years later the vision of name of Durban’s metropolitan the city leadership has been well municipality. Since its inception in realised. Through a small team of 2000, it has gained an international full-time municipal staff and a set reputation for leading the way of interns that are rotated from in terms of innovative service the local universities, MILE offers delivery, particularly around its a range of knowledge exchanges pro-poor water and sanitation focus, to hundreds of politicians and its solid waste facilities that convert technicians from all over the its methane gas to energy that is put African continent and beyond. back into the grid, its progressive The MILE team structures learning climate change adaptation policies programmes based on need from and its participatory urban strategic Master Classes, Learning Exchanges planning approaches. As more and and Seminars. What is unique about more municipalities learned of these their offerings is the fact that all successes, eThekwini was seen as a learning is led by officials from the city that other metropolitan areas municipality. The MILE team help and towns could emulate. By 2009, translate the tacit knowledge of the city’s political and administrative the line department experts into MILE WAS POSITIONED leadership made a bold decision explicit knowledge and package a to establish their own Municipal set of interactive learning events TO ULTIMATELY BUILD Institute of Learning (MILE) – a and accompanying tools. Utilising THE CAPACITY OF knowledge management vehicle that what the World Bank Institute terms is dedicated to help create, organise, “blended learning”, their sessions MUNICIPALITIES NOT share and store knowledge that will are always interactive and include JUST IN SOUTH AFRICA ultimately improve the quality of field visits, videos and panel debates. BUT IN THE GLOBAL life. Rather than having a typical inward focus, MILE was positioned More than one-off learning however, SOUTH to ultimately build the capacity of another interesting aspect of the municipalities not just in South MILE approach is the municipal Africa but in the global South. technical support service that is offered. This involves deploying technicians to other municipalities to share their knowledge in structured peer learning process. Initiated through funding obtained from the Cities Alliance / UCLG CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 39
City Futures programme, this whilst it has struck a sustained IT HAS PARTNERED methodology of building capacity partnership with its national local has graduated into a programme that government association in order WITH SIX LOCAL AND has seen MILE practitioners offering to ensure its products respond to NATIONAL UNIVERSITIES technical assistance on a range of needs. Similarly, it has partnered aspects from energy efficiency to with UCLG through the Urban TO ENSURE THAT revenue management and urban Strategic Planning Committee to IT MAXIMISES ITS strategy development. ensure that it remains relevant by RESEARCH CAPABILITIES responding to African challenges. Collaboration and networking has been a signature of the Institute’s To date the model has been dependent modus operandi. It has partnered on funding from its own municipal with six local and national coffers and funding from the European universities to ensure that it Union, as all of its services are offered maximises its research capabilities, without cost. It will have to decide whether to lobby for more funding or commodify its knowledge by requesting municipalities to pay for For more information, please visit the services offered. www.mile.org.za 40
CASE STUDY 02 THE CITY OF BARCELONA AND MEDELLÍN A PIONEER IN CITY-TO-CITY COOPERATION
For almost two decades, Barcelona City Council has been carrying out In 2015, Barcelona City Council decided to increase its development cooperation activities. This experience, which has included budget on global justice and international cooperation up engagement with over 40 cities around to 9,108,700 euros and achieved the objective of allocating the world, has provided the Barcelona 0.7% of its own income to solidarity and international City Council with enough perspective cooperation. The amount is allocated to the activities of to increase and consolidate its NGOs on development cooperation, education, learning city-to-city cooperation model. Bilateral city-to-city projects, which and service provision, as well as bilateral cooperation with allow the exchange of Barcelona’s partner cities, including Medellin, Maputo, Havana, Tanger, experiences in municipal management Tetouan, Gaza and Nablus. with other local governments, have placed emphasis on the transfer of In the G8 summit in Gleneagles in 2005, the EU countries knowledge and good practices, aimed at contributing to the sustainable local agreed a plan for reaching the 0.7% target for development development of cities. aid by the year 2015.
A tale of two cities Cooperation between the cities method of designing libraries in ◗ Promoting culture and education of Medellín and Barcelona began neighbourhoods. In April 2013, a through various initiatives. almost ten years ago and has four-year protocol of friendship and focused on the exchange of models cooperation was signed between the ◗ Stimulating the creation of of municipal management and the two cities, focusing on the following collaborative networks. strengthening of local governance. aspects: The collaboration has generated ◗ Strengthening of technical and different processes that include ◗ Boosting municipal policies and human skills of the Municipality of many projects and activities. A great providing support to improve the Medellín through the training of deal of the cooperation between services dedicated to vulnerable and municipal technicians. Medellín and Barcelona began excluded populations in Medellín. through exchanges between the two cities’ libraries as part of a project ◗ Transferring knowledge and best that demonstrated the horizontality practices in the field of urban in their shared role and taught planning and management of public valuable lessons to both parties. The space with the accompaniment city of Barcelona has learned from of the Area of Urban Habitat of and is using Medellín’s participatory Barcelona. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 41
Authentic city-to-city Why is the relationship connection so strong? The collaboration between the Over the years and through many two cities has been both intensive processes of collaboration, solid, and extensive, going beyond just trusting and confident relations representing an institutional have been established between relationship between two municipal the two cities that have created an governments, with the specific environment to speak frankly about involvement of many departments the problems encountered on both of the City Councils of Barcelona and sides, as well as the things that are Going beyond the municipality and Medellín (libraries, markets, Urban working very well. As many institutions engaging multiple actors through a Habitat, the Institute of Education, in both cities have been connected, process of extensive collaboration Social Services, etc.). It is also an and connections continue to be builds relationships and helps authentic city-to-city connection, made, the relationship is strong on the work to grow, having a better with the active involvement a number of different levels. At the impact both inside and outside. of universities, professional political level, the mayors have been associations, NGOs, and many civil engaged and able to promote a associations from different fields conversation so that where initiatives (music schools, youth entities, are promoted in a political sphere museums, audio-visual media, etc.), in Barcelona, they have an echo in which ensures that the exchanges Medellín, and vice versa. Different and collaboration projects go well levels of the administration on both beyond the scope of the municipality sides understand the value that itself, becoming true processes comes from this relationship. At of cooperation between cities. In the technical level, strong ties have IN APRIL 2013, A Medellín, the people who have been created between the people who FOUR-YEAR PROTOCOL benefited from the different projects are more hands-on with the projects, know of the strong alliance with who know each other and work well OF FRIENDSHIP AND Barcelona, and even citizens who are together. At the city level, there COOPERATION WAS not normally involved in development have also been programmes where programmes are aware of the special it is the citizens who are engaged SIGNED BETWEEN THE ties to Barcelona. and promoting the conversation. TWO CITIES 42
“The added-value of the Barcelona-Medellín relationship is that we have been learning together from the different processes… Behind those programmes there are intangible assets,and the other great value of this relationship is the fact that we have created a bond between the people that work together. We are able to speak freely of the local priorities, to talk about concerns openly, and we speak up about the good things and the bad things that are part of the processes. We have built a strong bond between two cities and, City of regardless of the financial or technical cooperation that is involved, there is also a cultural bond that goes Medellín beyond those traditional issues of cooperation”. Maria Luisa Zapata Trujillo
“This cooperation has become internalised in our way of working and we are implementing new possibilities and innovating in various ways through this collaboration process. I don’t know if we have ‘upgraded’ our relationship from a relationship where the only aim was City of to collaborate around projects into something higher Barcelona now as two cities that have a similar view about what Jordi Cortés the cities can afford in terms of development, both for their own city and for other cities, and what they can contribute to international debates about development, and sustainable development specifically”. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 43
Future challenges
Barcelona and Medellín are of creating synergies between the committed to challenging their different players in the South and relationship to make it go beyond generating the conditions for them traditional means of cooperation – to be able to share experiences towards new ways of interacting as and good practices, and to transfer cities – and to build on their strong knowledge of similar situations and ties to pursue new objectives and problems. Barcelona and Medellín 10 See, for example, http://www.acimedellin. strategies. One example is through are engaging with Havana regarding org/en-us/communications/interna-noticia/ promoting triangular cooperation economic development and urban artmid/3147/articleid/257/havana-learns-from- 10 medellin-and-barcelona with partner cities, with the aim planning.
“When a city like Medellín wants to pursue new ways of getting engaged internationally – even though the city has had a transformation and has undergone a process of development that is known to many people – it is still hard for people in Medellín to understand why we as a city would be interested in helping other cities when we still have so many challenges. We are convinced that in doing so we are also learning a lot from other cities and we have a lot to learn from these processes. And this is something the city will be pursuing both technically and politically to City of Medellín strengthen South-South relations to be able to extend that Maria Luisa Zapata Trujillo into triangular cooperation relations and agreements”.
ORGANIZATIONAL INFORMATION
Direcció de Justícia Global i Cooperació Internacional, Barcelona Name: Jordi Cortés Website: http://ajuntament.barcelona.cat/relacionsinternacionalsicooperacio/en
Agencia de Cooperación e Inversión de Medellín Name: Maria Luisa Zapata Trujillo Website: http://www.acimedellin.org/en-us 44
CASE STUDY 03 MOZAMBIQUE AND BRAZIL DECENTRALISED INTERNATIONAL COOPERATION: CITY-TO-CITY PEER LEARNING – STRENGTHENING THE SERVICE OF LOCAL GOVERNMENT ASSOCIATIONS
The project, which ran from January technicians, universities, UCLG and 2013 through June 2015 and built other institutions. In the beginning, on former engagements, sought this seemed to be a risk factor as to improve the management of there were a number of uncertainties local development in terms of surrounding the project and all effective governance, sustainability partners had something to contribute. and participation to extend the In the end, however, it became a population’s right to the city. It factor of strength because of openness involved six cities from Brazil and amongst partners throughout the eight cities from Mozambique. The process and across their different cooperation also sought to improve methodologies. This allowed many the institutional capacities of local people to connect and ultimately authorities to manage development, strengthened the outcomes. “When we went to Porto consolidating them as development Alegre, we didn’t just agents on a local level and as actors In terms of follow-up, a challenge of development on national and will be how to ensure the project meet officials to learn international levels in the sphere continues as the funding has come to about participatory of South-South decentralised an end. budgeting. We also cooperation. The project was funded by the European Commission, the Seek, Sense, Share went to meetings Porto Norwegian Government, Cities Alliance Alegre had organised and the City of Barcelona. Framework The governance of the project The methodology used throughout with the community, and was a particular challenge in that the project and the role of partners therefore learnt a lot over 20 partners were involved, is described using Harold Jarche’s more through this hands- including mayors, networks of cities, ‘Seek, Sense, Share’ learning framework as it seeks to facilitate on experience.” the sharing of complex knowledge and foster a network built on trusted Benedito Guimino, Mayor of relationships. Inhambane – Urban Earth study. CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 45
SEEK IDENTIFY PARTNERS, CITIES, TECHNICAL AND POLITICAL LEADERS, AND PEOPLE
The positive experiences of the Cat), the University of Lleida’s a sense of capacity, expectations, City Future project funded by the UNESCO Chair, and the Intermediary needs and the potential technical Norwegian Government and Cities Cities Network (CIMES). The and political leadership in the Alliance since 2010 helped in objective was to bring the actors several cities. Cities were asked to the selection of participants and together through triangular mobilise technical leaders, as the partners to target for engagement cooperation built around Brazilian project had a commitment to deliver in the Mozambique and Brazil cities’ experiences and expertise, content and the improvement of project, both as facilitators and European support and Mozambican urban planning and management as implementers, and to build leadership. A foundation of instruments. Parallel partnerships a support team. These included mutual trust and interest as well were also developed with the the National Association of as similar views on development International Labour Organisation Municipalities of Mozambique cooperation had already been and Metropolis who have a strong (ANAMM), the National Front of established between a number of the commitment to strengthening Mayors of Brazil (FNP), Architects stakeholders, notably through the international peer learning. Without Borders – Catalonia (ASF- City Future project, helping to create 46
SENSE BUILDING CONTENT AND RESULTS
In this phase UCLG was tasked with awareness of the project in time periods involved and the building a process to establish and Mozambican cities. effectiveness of the tool. orient committed partnerships, This peer-working methodology key to mitigating any changes in The bilateral meetings in helped to overcome difficulties technical and political leadership Mozambique enabled the and challenges faced in each during the project. First missions application of the knowledge location, and enabled tailor-made were organised and contacts gained and encouraged solutions through a bottom-up were established, technical governments to move towards and participatory approach. responsibilities were clarified and more implementation ‘inside and Brazilian technicians helped to communication systems were set outside’ the legal definition of build the self-confidence not only up. The content development of the instruments. The bilateral of their peers, but also of the city each city partnership was sketched partnerships tested and piloted teams. The partnership helped by project partners and the first the improvement of management the city council to address all the evaluation was completed together practices in the area of urban spheres of planning and to build in the first seminar in Nampula in planning and management that coherence between regional, 2013. had been formally identified and city-wide, neighbourhood or refined during the implementation special areas planning. A unique The development of partnerships phase. These included the master feature of these meetings was was mainly carried out in small plan, land management and hands-on engagement between groups through bilateral meetings budgeting – all three of which the technicians and the mayors among technicians. If possible, were priority areas for Mozambican whereby the technicians informed these included the participation reform on decentralisation, as mayors of the plans, asking of management staff. Each city indicated by the Mozambique for the mayors to confirm the partnership had a specific theme association ANAMM. The tasks, signing the report back and scope, which was endorsed by partnership helped Mozambique as an official document. This the mayors of the cities. to see planning and management methodology was an eye-opener in another light and to understand for many mayors, who thus had a The bilateral meetings in Brazil the value of instruments for better understanding of the role were of utmost importance to developing policies and informing and work of their technicians, motivate political and technical decision-making processes. which led to higher levels of trust. leadership and develop a vision The exposure of Mozambican of where and how far to go. They The pair methodology, used mayors and technicians to were prepared and coordinated through the duration of the Brazilian leaders motivated some by the Brazilian technicians who project, was carried out in six processes immediately, including had previous project experience stages: develop diagnostics in participatory budgeting, where in Mozambique. In these technical and identify needs; identify Brazilian encouragement played visits to Brazil, Mozambique often similarities and differences; an essential role in ensuring expanded its delegation at its define priorities and transferable commitment from leaders in own cost to include additional knowledge; joint creation of the Mozambique. stakeholders, including key work plan, schedules, results politicians and other public and responsibilities; exchange actors such as national water and practices and instruments electricity companies, resulting according to the selected themes; in wider acknowledgement and assess the results, gauge the CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 47
SHARE DISSEMINATE RESULTS AND EVALUATE THE PROCESS
A number of activities held in particular taken up by FNP and during Africities 2015; throughout the project helped to universities; ◗ The European Commission is building share information on the undertaking ◗ A roundtable discussion at the World references around the project; of the project, implementation and Urban Forum in April 2014 in Medellín ◗ University partnerships were signed its results, including: that brought the project to Latin and enabled follow up of the partners America; involved; and ◗ An official launch of the project in ◗ Presentation of the project during ◗ The heads (mayors) of the Brazilian February 2013, which helped to build the European Days on Decentralised Association delegated the FNP to coherence between partners such Cooperation (ASSIS) in 2013; continue seeking funds for a second as UN Habitat, Cities Alliance, GIZ ◗ Presentation of the project in 2014 phase of activities. Germany and the World Bank; to the CIB Working Group, and to ◗ A roundtable discussion held in development funds in Andalucia, Additional outreach included a blog Brasilia at the beginning of the Galicia and Mallorca; to share the results and to connect project; ◗ A book and an Expo were prepared to other stakeholders; a newsletter; ◗ Presentation of the project to the and shared in social and academic radio interviews provided by Brazilian ANAMM congress; networks; the expo “decentralised mayors; and strategic connections to ◗ Three seminars in Mozambique, where cooperation to democratise cities” other events and meetings in Brazil. activity plans and results were shared will be shown in Maputo and Brasilia; Sharing the results in academic circles not only with cities but also with ◗ Continuous reporting to the UCLG and universities is foreseen through an stakeholders and partners, including Executive Bureau; academic online publication that the donors, which fostered increased and ◗ Dissemination during UCLG and other University of Lleida is coordinating. continuous interest; events, such as the Brasilian forum ◗ Networking in Nampula in August for cooperation (EDS); partners The questions of follow up 2013 that sought to review and discussed the project in a roundtable communication and ‘after care’ were further enhance the communication in the UCLG Executive Bureau in Porto identified as challenges requiring agenda and contents, that were Alegre, lessons were also shared further attention.
“The project funds finished in July and we are still keeping it going in the future. We asked mayors in Brazil what FNP they would like to do in the future, and they indicated Paulo Oliveira they would like to maintain this cooperation. During this project a number of mayors changed in both countries but the project was so well built that all of the new mayors accepted to continue on with the project, some of them
were even more enthusiastic than their predecessors. With Read more online: the cities in the driving seat, the associations FNP and http://issuu.com/uclgcglu/docs/ decentralised_cooperation_to_ ANAMM and UCLG promote the results and modality”. democr_4ca45697977607. 48
Euro-Latin-American Barcelona City Council GLOSSARY OF Alliance of Cooperation (Ajuntament de PARTICIPATING among Cities (AL-LAs) Barcelona) The Euro-Latin-American Alliance of Barcelona City Council began Cooperation among Cities, AL-LAs its engagement in international ORGANISATIONS was established in 2013. Since then, cooperation for development and this network based on a strategic solidarity several years ago with city- approach has emphasised the to-city cooperation with Sarajevo in international role of cities as a means the mid-1990s. Sarajevo was the first of innovation in a global context. city to receive funding, the exchange of knowledge and expertise, with the Coordinated by the Government participation of municipal experts, of Mexico City, in partnership NGOs and some private companies, with seven other Latin-American from Barcelona who were involved cities: Montevideo (Uruguay), in rebuilding parts of the city. Moron (Argentina), Belo Horizonte After successful cooperation with (Brazil), Quito (Ecuador), Medellín Sarajevo, the programme spread to (Colombia), Lima (Peru) and Rio other cities. The department dealing de Janeiro (Brazil); as well as two with these activities is, actually, the European local government networks: Global Justice and International United Cities of France (CUF) and the Cooperation Department. In 2015 Andalusian Fund of Municipalities Barcelona allocated 0.7% of its own for International Solidarity (FAMSI); budget to international cooperation AL-LAs has become a strategic hub for development, and the plan is to of cooperation and knowledge maintain this level of funding in the sharing that aims to enhance cities’ future. As a decentralised cooperation international relations in order to player, the City Council promotes improve their public policies and good local governance through territorial development for the its city-to-city cooperation model benefit of local communities and and can offer a lot of experience residents, public employees and in promoting public policies officials, universities, businesses, geared towards social cohesion, cultural organisations, students, etc. promoting citizen participation in government action, and in developing AL-LAs is a new approach to the a constantly evolving model of way we concieve, understand and political, administrative and fiscal transform the world. decentralisation. The Barcelona City Council Master Plan 2013-2016 Further information is available outlines strategic and geographical online: https://www.proyectoallas. priorities for collaboration. net/about_en Follow us Further information is available Twitter: @proyectoallas online: http://ajuntament. Youtube: proyectoallas barcelona.cat/relacionsinternacio Instagram: @proyectoallas nalsicooperacio/en/strategy-and- planning CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 49
UCLG Working Group on National Confederation Government of the Capacity and Institution of Municipalities Province of Barcelona Building (CIB) (CNM) (Diputació de UCLG’s Working Group on Capacity The National Confederation of Barcelona) and Institution Building (CIB) is a Municipalities (CNM), based in The Government of the Province of technical platform for professionals Brasilia, Brazil, is an independent, Barcelona (Diputació de Barcelona) from Local Government Associations non-partisan and non-profit operates at a supra-municipal level in (LGAs) and individual local organisation founded in 1980. It the Province of Barcelona and works governments active in the field is the largest association in Latin for the interests of the 311 individual of capacity development and America with approximately 5,000 municipalities in the province and local government development affiliated members. Work at the for the regional government as a cooperation. The overarching goal of national level includes negotiations whole, covering more than 5 million the platform is to gain more attention with the National Congress, and inhabitants, including Barcelona. and recognition for local government with the Federal Government where One of the strategic objectives of development cooperation, within CNM presents the demands of the Province of Barcelona is to make and outside of UCLG. By bringing municipalities and mayors. CNM’s progress on sustainable development. together professionals of this political department works with Over the years, the Government type of cooperation, a pool of regional, macro-regional and regional of the Province of Barcelona has knowledge is built and an exchange level associations of municipalities. made a strategic commitment to of the most effective capacity- CNM works for excellence in municipal internationalising the cities and building methodologies can take management and improvement of territories of Barcelona and creating place to achieve concrete results the quality of life for its citizens, opportunities for the territory and its on the ground. The CIB Working including through the production citizens. Since 1994, the Province of Group has three angles to its of research and technical studies in Barcelona has had a unit specialised in work: i) information exchange several areas of the municipalities, promoting international activity – the about programmes and activities technical and legal guidance and Department for International Relations of local government development the development of technological – whose mission is to position Barcelona cooperation that the members tools aimed at modernising by setting out strategies for the are implementing; ii) programme management and digital inclusion challenges and opportunities it faces coordination to avoid overlap of municipalities. CNM also has in regard to Europe, the Mediterranean between activities and duplication operations in the international region and Latin America, including of efforts; iii) contributing to arena. Part of these efforts include through implementing international policy dialogues and strengthening promoting exchanges between cooperation projects. Some of its advocacy before the international authorities of other countries with key objectives have been to promote community on the importance of the aim of improving the ideas of spaces that allow cooperation local governments and their role in municipalism and citizenship. Each between municipalities, to increase development. The CIB Working Group year CNM organises March to Brasilia skills in international issues for also analyses methodologies used in Defense of Municipalities, the municipal staff, to develop channels for programme implementation, largest municipal political event in of participation for municipalities monitoring and evaluation to Brazil. of the province in international ensure further professionalisation fora and networks, and to support of the development cooperation Further information is available the municipalities in the process of undertaken by members. The CIB online: http://www.cnm.org.br/ definition and implementation of website provides information about institucional/conhecaacnm/quem- their decentralised cooperation. The the programmes of CIB members and somos Province of Barcelona has a number contains a compendium of key tools of training initiatives, ranging from and publications. on-site training, to specific seminars and conferences on current issues, to Further information is available online training, including on topics online: http://www.cib-uclg.org/ such as decentralisation and local governance, and local policies of social cohesion.
Further information is available online: http://www.diba.cat/en 50
Federation of Canadian National Front of Mayors METROPOLIS Municipalities (FCM) (FNP) METROPOLIS is the leading The Federation of Canadian Established in 1989, the National international organisation gathering Municipalities (FCM) is the national Front of Mayors (FNP) is a non- cities and metropolitan regions of voice of municipal government partisan organisation made up of more than one million inhabitants. representing 90% of Canada’s mayors and cities across Brazil, Created in 1985, the association municipal population. Members who strive to meet the growing is represented by more than 140 include Canada’s largest cities, small demands for public services in members from across the world and urban and rural communities, and 20 Brazilian cities. FNP aims to ensure operates as an international forum provincial and territorial municipal municipal autonomy and promote to explore issues and concerns associations. FCM actively advocates the participation of municipalities common to all large cities and to have the needs of municipalities in decentralised cooperation, metropolitan regions. METROPOLIS – and their citizens – reflected in including through South-South and also manages the metropolitan federal policies and programmes. triangular cooperation initiatives section of UCLG. METROPOLIS Working on behalf of its members, that support knowledge exchange promotes collaborative and learning FCM actively engages with the federal and capacity building. FNP has broken programmes between the major government on a wide variety of ground by addressing issues such cities of the world, including issues that impact municipalities, as urban policy, social inclusion through METROPOLIS Initiatives, the aiming to ensure that local voices are and decentralised international METROPOLIS International Training heard and that federal legislation cooperation between cities. In Institute, and the Policy Transfer works for municipalities. FCM addition, FNP provides a strong and Platform. METROPOLIS promotes brings together experts and other united voice to mobilise and shape visibility around outstanding urban stakeholders who are committed to the municipal response to important development experiences and building sustainable communities, social and economic challenges, recognises the key role of local providing networking opportunities promoting municipal interests decision makers in the international that enable municipalities to share in Congress, and empowering arena. METROPOLIS World Congresses knowledge and learn from peers, as municipalities with in-depth analysis and Annual Meetings create well as to meet key federal decision- on federal legislation and expert opportunities to promote the major makers and promote local initiatives. advice on federal-municipal matters cities of the world and provide a In addition, FCM develops and that impact local communities. platform to disseminate key political delivers innovative solutions that help Every other year FNP co-organises messages and declarations from the communities thrive, while addressing the largest event on urban community of mayors worldwide, key local and national priorities. Key sustainability in Brazil – the Meeting showcase diverse good practices priorities include climate change of Municipalities for Sustainable coming from METROPOLIS member and resiliency (including the Green Development – which brings together cities, and enrich the debate between Municipal Fund, Partners for Climate mayors and municipal officials from different levels and stakeholders of Protection Programme, etc.); throughout Brazil to discuss possible urban management. METROPOLIS international cooperation (including ways to collaborate and share also promotes strategic networks refugee resettlement); seniors and knowledge on sustainability at the for effective cooperation worldwide, housing; rail safety; and responding local level. in particular in promoting gender to ageing infrastructure. mainstreaming and empowering Further information is available youth in urban management. Further information is available online: http://www.fnp.org.br / online: http://www.fcm.ca/home. http://www.emds.fnp.org.br Further information is available htm online: http://www.metropolis.org/ UCLG CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 51
eThekwini Municipal South African Local Seoul Metropolitan Institue of Learning Government Association Government (SMG) (MILE) (SALGA) Seoul is the capital city of Korea with The Municipal Institute of Learning The South African Local more than 10 million inhabitants. The (MILE), established in 2009, is Government Association (SALGA) city experienced rapid urban growth the first-ever local government- is an autonomous association of with an enormous influx of inhabitants driven, practitioner-based Institute municipalities with its mandate between 1960 and 1990, and now it is of Learning. Based in Durban, derived from the Constitution of considered as a rising global city and the South Africa and located within the Republic of South Africa, which most wired city in the world. With 10,000 the eThekwini municipality, the defines SALGA as the voice and sole staff and more than 120 divisions, initiative provides a collaborative representative of local government. Seoul Metropolitan Government (SMG) knowledge management space for SALGA serves as the representative is committed to serving its citizens, practitioners to engage with others voice of all 278 municipalities and covering areas from urban planning in the Southern African region. MILE interfaces with parliament, the and transportation to culture and social offers practitioners opportunities National Council of Provinces, cabinet inclusion. to organise information, research, as well as provincial legislatures. case studies and protocols that It comprises a unitary national Increasingly, SMG has expanded its can be easily accessed by other association, with a national office and scope and is playing an active role in the municipalities looking to apply nine provincial offices. In line with its international arena, such as assistance them. Strategic objectives include mandate, SALGA has set out its role in disaster risk reduction and global facilitating the enhancement of to represent, promote and protect the network participation, amongst other professional and technical capacity interests of local government in the activities. of local government professionals intergovernmental system; transform on the African continent; leveraging local government to enable it to fulfill In terms of policy sharing, SMG has partnerships with tertiary institutions its developmental role; raise the created an online archive of key policies to promote collaborative research profile of local government; ensure (Seoul Solution) which includes 162 programmes that will ultimately the full participation of women in policies in 9 categories in the field of improve the effectiveness of local local government; perform its role urban planning, environment, water government; serving as a platform for as an employer body; and develop supply, e-government, etc. The Seoul innovating, learning and sharing with capacity within municipalities. Human Resources Development Center other municipalities, associations (SHRDC), which hosts the headquarters and networks, both locally and SALGA has launched the SALGA Centre of Metropolis International Training internationally; and providing for Leadership and Governance, Institute (MITI), has operated training a municipal technical support which uses a blended-learning programs for foreign city officials since service to other municipalities in methodology to drive professionalism 2008 to promote cooperation through an empowering and innovative and excellence in the municipal policy case sharing and to develop the manner, among others. MILE has environment. The overall goal is to capacity building. Training topics include been instrumental in its role as a transform municipal administrations transportation, e-government, urban knowledge-sharing hub assisting into learning organisations management, climate change policy, provincial municipalities to map the characterised by systematic problem and best practice policies that the city of way towards urban transformation solving, experimentation with new Seoul would like to share. and at the same time co-ordinates approaches, and learning from the knowledge management programmes experiences and best practices of Further information is available throughout the African continent. A others, etc. online: http://seoulsolution.kr, new Learning Academy is envisaged. http://mitiseoul.org Further information is available Further information is available online: www.salga.org.za online: http://www.mile.org.za/ 52
United Cities and Local UCLG Committee of UCLG Committee on Governments Digital and Knowledge- Culture/Agenda 21 for Asia-Pacific (UCLG- Based Cities (CDC) Culture ASPAC) Established in 2005, the Committee The Committee on Culture of UCLG/ United Cities and Local Governments of Digital and Knowledge-Based Cities Agenda 21 for Culture is the global Asia-Pacific (UCLG-ASPAC), the (CDC) of UCLG, chaired by the City platform of cities, organisations and largest regional section of UCLG, of Bilbao, aims to create an efficient networks to learn, cooperate and is based in Jakarta, Indonesia, network of cooperation enabling launch policies and programmes on and serves as the key knowledge local authorities to take advantage the role of culture in sustainable management hub on local governance of the opportunities that the new development. Agenda 21 for Culture issues in the region. It has linkages to information and communication is the founding declaration of the more than 7,000 local governments, technologies (ICT), innovation and Committee; the declaration was representing over 3.76 billion people. knowledge provide, and to share, approved in 2004 with 67 articles. Since Key objectives of UCLG-ASPAC include assimilate and adapt them to local then, the Committee on Culture has promoting strong and effective needs. The committee has been fostered numerous exchanges to make democratic local self-government working to reduce the digital divide this declaration useful for cities and throughout the region/world through and to boost the implementation local government, providing a neutral promoting unity and cooperation of the digital local agenda as a place where ‘leading cities’ (those with among members; ensuring the means to promote the economic and experience in the relation between effective political representation of social development of communities culture and sustainable development) local government before the UN and and improve the quality of life of and ‘pilot cities’ (those wishing to other international communities; citizens. The Committee works like learn about culture and sustainable acting as a worldwide source of a network and serves as a platform development) can find useful content. information on local government, for the exchange of knowledge, The Committee on Culture also provides learning, exchange, and capacity experiences, best practices and a conceptual framework (culture as a building to support democratic local lessons learned. It also works like stand-alone dimension/pillar/sphere governments and their associations; an observatory, identifying new of sustainability) that places culture promoting twinning and partnership tendencies and topics. The Committee in equal relation to other dimensions between local governments and has produced the “Smart Cities Study: (social, economic, environmental) peoples; and promoting local International study on the situation of development and emphasises an economic, social, cultural, vocational of ICT, innovation and knowledge in integrated approach. Agenda 21 for and environmental development cities”, which provides an overview Culture promotes the exchange of in enhancing the services to the of the current situation of 28 cities experiences and improves mutual citizens based on good governance in different regions of the world, in learning, including through networking principles, amongst others. UCLG- terms of six key areas of importance and project development, and conveys ASPAC has been actively involved that affect the development of cities: the key messages of cities and local in the Partnership for Democratic economy, citizenship, governance, governments. Agenda 21 for Culture has Local Governance in Southeast Asia mobility, environment and quality a global database of good practices on (DELGOSEA) programme, which of life. A smart city uses digital culture and sustainable development, aims to create a network of cities technologies or ICT to enhance the with a focus on innovation, and municipalities to implement the quality and performance of urban participation, sustainability, efficiency, transnational replication of local services, to reduce costs and resource transversality and reproducibility, as governance best practices across consumption, and to engage more well as a practical toolkit – the ‘Culture South-East Asian countries (ASEAN) effectively and actively with its 21 Actions’ toolkit – that provides including Cambodia, Indonesia, citizens. The Committee organises guidance for cities aiming to evaluate, Philippines, Thailand and Vietnam. an annual forum that provides the design and implement cultural opportunity for cities to connect with policies contributing to sustainable Further information is available other cities on topics related to the development. It was adopted at the first online: http://www.uclg-aspac.org/ use of new technologies, innovation United Cities and Local Governments’ and knowledge to make more efficient Culture Summit, held in Bilbao in March and sustainable cities. 2015.
Further information is available Further information is online: http://www.uclg- available online: http://www. digitalcities.org/ agenda21culture.net/ CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 53
United Cities and Local VNG International Governments-Africa VNG International is the (UCLG-A) International Cooperation Agency UCLG-Africa, the African regional of the Association of Netherlands section of UCLG based in Rabat, Municipalities. The organisation Morocco, is the umbrella organisation supports decentralisation processes and the united voice and and facilitates decentralised representative of local government cooperation. VNG International, in Africa. UCLG-A brings together which is part of the worldwide 40 national associations of local family of local authorities and an governments from all regions of international service provider, aims to Africa as well as the 2,000 cities strengthen local governments, their that have more than 100,000 associations, training institutes and inhabitants, representing nearly 350 decentralisation task forces both in million African citizens. Principal developing countries and in countries goals of UCLG-A include promoting in transition through capacity decentralisation in Africa and African development of local governments, local governments as a distinct and training of elected politicians autonomous sphere of government; and municipal staff, etc. VNG contributing to the building of African International places a strong focus on unity through local governments’ learning and capacity development dynamism; supporting and and has developed a number of tools empowering national associations with and for local governments, of local governments and individual ranging from a benchmarking governments to deliver on their learning tool to compare performance mandates; and promoting exchange with other local governments in of experiences and best practices the region or country, to the 5 among African local governments Capabilities methodology to build and with local governments from capacity and help local governments other regions of the world. The latter to identify their relative strengths and is accomplished through a platform weaknesses. Another tool that has of exchange entitled the Africities been developed is modernised local Summit, organised by UCLG-A taxation, which aims to improve local every three years, as the space of tax income collection within existing expression of the political voice of regulations. VNG International has local government, bringing together produced a number of publications, about 5,000 people, including including guides and toolkits for local ministers. governments and their associations.
Further information is available Further information is available online: http://www.afriquelocale. online: http://www.vng- org/en/ international.nl 54
INTERVIEWEES The table below displays the stakeholders interviewed for this publication. A total of 20 stakeholders were interviewed over FOR THE PUBLICATION the period 28 September – 19 November 2015.
Date Name of interviewee Organisation Country/City Type of interview
eThekwini Municipality – 28/09/2015 Mpilo Ngubane South Africa in-person Municipal Academy
eThekwini Municipality – Municipal 28/09/2015 Sogen Moodley South Africa in-person Institute of Learning (MILE)
South African Local Government 28/09/2015 Kubeshni Govender South Africa in-person Association (SALGA)
South African Local Government 28/09/2015 Reuben Baatjies South Africa in-person Association (SALGA)
28/09/2015 Christine Piquemal METROPOLIS Barcelona in-person
28/09/2015 Agnès Bickart METROPOLIS Barcelona in-person
UCLG Committee on Culture/ 28/09/2015 Jordi Pascual Barcelona in-person Agenda 21 for Culture
28/09/2015 Paulo Oliveira Frente Nacional de Prefeitos (FNP) Brazil in-person
29/09/2015 Octavi de la Varga Mas Diputació de Barcelona Barcelona in-person
29/09/2015 Hans Buis VNG International Amsterdam in-person
06/10/2015 Arnau Guiterrez Diputació de Barcelona Barcelona written contribution
Federation of Canadian 16/10/2015 Sébastien Hamel Canada Skype interview Municipalities (FCM) Bernadia Irawati 16/10/2015 UCLG-ASPAC Jakarta Skype interview Tjandradewi 19/10/2015 Renske Steenbergen CIB Working Group The Hague Skype interview
Confederação Nacional de 20/10/2015 Tatiane de Jesus Brazil Skype interview Municípios (CNM)
21/10/2015 Jordi Cortés Ajuntament de Barcelona Barcelona Skype interview
27/10/2015 Braulio Díaz AL-Las Mexico City Skype interview Jean-Pierre Elong 29/10/2015 UCLG Africa Rabat tel. interview Mbassi Seoul Metropolitan Government 13/11/2015 Kate Kim Seoul written contribution (Secondee to UCLG) 3-way skype with 19/11/2015 Maria Luisa Zapata The City of Medellín Medellín Barcelona UCLG Committee of Digital and 10/11/2015 Lidia Cobas Bilbao Skype interview Knowledge-Based Cities CITY-TO-CITY. A Guide to the UCLG LEARNING UNIVERSE 55
https://www.fcm.ca/Documents/ Methodology KEY tools/International/UCLG_ https://www.fcm.ca/Documents/ Policy_Paper_on_Development_ tools/International/UCLG_ DOCUMENTATION Cooperation_and_Local_ Policy_Paper_on_Development_ Government_EN.pdf p. 12 Cooperation_and_Local_ AND RESOURCES Government_EN.pdf p. 21 The Urban Strategic Planning committee undertakes and facilitates “Decentralised development cooperation among cities, sharing cooperation – European perspectives” and building on alternatives for http://www.ccre.org/docs/ growing urban issues with local Platforma_European_perspectives_ governments and local associations EN.pdf along with global partnerships for strategic sustainable urban https://webgate.ec.europa.eu/ development. fpfis/mwikis/aidco/images/4/45/ http://www.beta.uclg-planning. CD_final_report_EN_april2013.pdf org/about-us http://urbact.eu/capacity- http://www.beta.uclg-planning. building# org/city-city-cooperation
http://issuu.com/uclgcglu/docs/ eng_book_web
http://www.uclg.org/en/issues/ decentralisation-and-local- democracy
http://www.uclg.org/en/media/ news/south-south-and-city-city- cooperation-strategic-topic-ilo-uclg- partnership
Development Effectiveness at the Local and Regional Level https://issuu.com/uclgcglu/docs/ platforma_development/21 Funded by:
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